The White House budget office has ordered a pause in grants, loans and other federal financial assistance, according to a memo sent to government agencies on Monday, potentially paralyzing a vast swath of programs and sowing confusion and alarm among the array of groups that depend on them.

Notably, Trump’s executive order on FEMA does not seek to eliminate the agency; Congress would need to act to do that. The order instead underscores Trump’s interest in turning to outside advisers and private-sector companies to fill some typically governmental functions as he seeks to quickly accomplish his second-term goals.